Police Reform and Social Responsibility Bill

Baroness Farrington of Ribbleton Excerpts

Monday 11th July 2011 Lords Chamber

[Baroness Hamwee]

I shall ponder on that. My other question, which my noble friend Lord Shipley may have asked on a previous occasion, is whether, given the importance of the numbers, the Government anticipate providing through regulations procedures for substitutes for members of the panel. Furthermore, is it intentional on the part of those who proposed these amendments that they apply only to the precept and not to the appointments, which is the other candidate for veto? Whatever we end up with should stay the same. I think it is right that a member can affect an outcome by staying away, and I hope that my noble friend the Minister can reassure the House on that point.

[Baroness Farrington of Ribbleton]

I hope that when the Minister replies the point raised on substitutes will be answered very fully. As for the role of the members of the panel in the public’s eye, in the Government’s own words they are there to provide a check and balance should things become difficult and should the public not wish to support the proposals of the commissioner. That might happen midterm; we have all seen this. I can foresee a situation when members of the public may appear and say, “Can’t you do anything? You’re supposed to have a role—complementary, or a check and balance, or both”. I hope that the Minister can answer that in detail.

On members “present and voting”, having been a whip in your Lordships' House for many years, I think everyone will accept that being present and not voting is a very different thing to count or even to make presumptions about. I have known Members of your Lordships' House, who have been in the Palace but who have not been present in the Chamber during the voting, who have formed an opinion, in advance of leaving, that they do not wish to vote, in line with their own whips’ advice. So we must stick to those who are “present and voting”. It would be impossible to determine which way to allocate votes for those who were present and who did not vote.

Given the time of the year, when there will be a whole lot of different activities for elected mayors, members of local authorities and professionals seeking to formulate their budgets, and when historically quite a few people may be down with flu or other illnesses, I hope that the Minister will take very seriously the point made about the simple majority. Otherwise, we could end up in a situation whereby the hopes of the public, raised by the descriptions of the Bill given by members of the Government, will be dashed when they find that there are no checks and balances.

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[Lord Shipley]

My Lords, I shall speak to Amendments 121 and 123. I mention in passing that it seems clear that the objective of Amendment 140, on which we might have said some things, has been achieved by Amendment 139.

I share some of the concerns of my noble friend Lord Newton. This is a complex matter that requires further thought. We have had some concern about the small size of the panel, so the Government’s proposal is welcome. We had wanted four co-opted members and 15 local authority members, making a total of 19 altogether. It is important that the panel is not too big—otherwise it might become unwieldy—but it has to be big enough to enable the diversity and geographical requirements to be met as part of the construction of that panel. Otherwise, it will not represent the area that it seeks to represent.

There are two outstanding issues. The first relates to the political balance of parties. It could be possible for a party-political label to be attached to the elected commissioner, and that party could have a massive majority of the local authority representatives nominated to the panel. That is not in the interests of the general public, and there has to be a system of meeting what the noble Lord, Lord Harris, pointed out—that the issue of proportionality must be delivered. Otherwise, the public will not have confidence in the ability of the panel to scrutinise independently and objectively the work of the commissioner.

The second issue that will have to be addressed is that of substitutes. Whatever the size of the panel, the fact remains that if people send apologies some local authority areas simply will not be represented at a key meeting. It would not be sustainable for a debate on the precept level to be undertaken without some councils being present at it. The issue of substitutes has to be urgently addressed. It is entirely possible that there could be an outcome, given the vote that we have just had, where, thanks to a majority of the members of the panel, if people were not present at the meeting, a different result could have been obtained had there been a higher turnout because of the way in which the veto operates. There is then a question of whether telephone or video attendance would be acceptable.

These are not secondary matters; they are fundamental. If a local authority finds that it cannot be present at a critical meeting and yet, for example, a precept is approved that it would not have supported, that is not going to be sustainable even in the short term. The Government will have to come up with some amendments regarding that.

[Baroness Farrington of Ribbleton]

My Lords, I am slightly confused now. Those of us who argued for the “of those present” amendment now see the noble Lord, Lord Shipley, talking about the need for substitutes, without which the right result may not come out. That is a little confusing.

I am standing up because I have a déjà vu about a déjà vu. I remember advising the Minister to talk to the noble Lord, Lord Howard of Lympne, about the way that he achieved the political balance that her Bill seeks to achieve but I believe, from the contributions today, does not achieve. Like the noble Lord, I, too, live in an area where the police authority has a lot of different local authorities—Essex also has many different local authorities—which is a situation that arises across the country. However, the noble Lord, Lord Howard, as Home Secretary, spent a great deal of time achieving a balance to counteract political dominance of police authorities that was unrepresentative of the local community, and ensuring that no one party—rather than no one person—could dominate and pervert the views of the local area.

The proposal before us today puts most of the power in the hands of an individual who may have been one of the people whom Michael Howard, as he was in those days, thought was unsuitable to dominate what was happening in policing, backed up by a system on the panel that will not give diversity. I hope the noble Baroness will be able to assure me that this proposal, rather than my noble friend’s amendment, carries the Michael Howard seal of approval to ensure balance. Although I did not always agree with him when he was Home Secretary, I recollect that he worked very hard to do something that the present Government are busily unpicking. They ought to stop it.

[Lord Hunt of Kings Heath]

My Lords, my noble friend Lady Farrington takes us back to the core of the debate. Of course, the question is: which Michael Howard? I very much agree with my noble friend that the problem we face is that we do not accept that police authorities have failed in the way that the Government say they have. We also do not accept that the police authority should not be the model that might be used to develop the police and crime panels. These issues of political balance and the role of independent members are very important. I should have thought that the model of the police authority was one to be followed.

I know that the noble Baroness has tabled her own amendments. Their intention is to keep the same model as is currently in the Bill but to allow areas to increase their representation by co-opting additional members from existing local authorities or additional independent members, with a cap of 20 members in all. I welcome that as far as it goes. My concern is that I am not sure it is entirely appropriate to give complete discretion to the police and crime panels themselves. If we are preserving any remnant of a tripartite system, it is right for the Home Secretary to lay down through legislation certain minimum requirements for police and crime panels, such as that there should be political balance and a proportion of independent members. That is why I very much warm to my noble friend’s amendment.

The noble Lord, Lord Shipley, raised the issue of substitutes. The problem is that the House has now decided, by voting, that the decision will not be that “of those present and voting”. However, the House has not solved the evident problem that, by making sure the veto can be used only in relation to the number of members, there are all sorts of reasons why it will be almost impossible ever to use it. One thinks of illness. I understand that there is no proposal for how to deal with that. What happens if the local authority is setting its own precept at the time that the panel meets and a member of the panel has to attend? In some areas, we are talking about a large number of local authorities. The idea that a noble Lord can come to the Dispatch Box and say, “Oh, but the meeting time with the PCP will be known and, therefore, no other authority will meet”, is unrealistic. In some areas, we will have a number of elected mayors—the Government are forcing referendums on 11 of the largest cities in England. Presumably, if the government amendment is passed, there will be elected mayors in other cities and boroughs who will already, and automatically, be members of the panel. You could have a situation whereby the attendance record at a meeting of the panel is quite low. It would, therefore, make it almost impossible for the veto to be exercised.

The Government and the House have now decided to reject a sensible amendment by which the veto requirement should be “of those present and voting”. I agree with the noble Lord that this matter has not satisfactorily been resolved. The Government will have to think about this matter between now and Third Reading, because this simply should not stand as it currently does in the Bill.

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[Baroness Browning]

I hate to disagree with the noble Baroness, Lady Henig, on this because I know that her motives are well-meaning. That paragraph in Schedule 6 has the heading: “Duty to produce balanced panel”—the Bill very clearly already includes the duty to produce a balanced panel. The noble Baroness describes a situation, and it saddens me to say this, in which there may be councils around the country with no elected Conservatives at all, although that can apply to other parties in other parts of the country. However, what I can only describe as the generosity of increasing the number of people that can be co-opted on to the panel means that I would expect a responsible panel to make absolutely sure that it would look to the additional co-optees to redress that political balance. If that is what the panel puts to the Secretary of State, I can see no reason why it cannot do that. If the motivation is to create a politically balanced panel, Conservatives can be co-opted to the panel to get political balance. I see no reason why what I am doing does not address the point that she is making.

[Baroness Farrington of Ribbleton]

My Lords, the Minister has failed to see the critical difference between the proposals in this Bill and the solution to the problem that everybody in this debate wishes to overcome, which was achieved by the noble Lord, Lord Howard of Lympne. I have yet to hear an answer as to why the proportional representation that was written in to the police authority legislation that we currently have is being done away with. Will the Secretary of State say to authority A: “I am sorry, the system has not worked; you are unbalanced and therefore you will co-opt to balance yourselves”? I am sorry but we have a problem that was fixed and we are now busy recreating the original problem.

[Baroness Browning]

My Lords, perhaps the solution to that is that PCPs can also set out their own rules and practices for all other business and procedures under Part 4 of Schedule 6, at paragraph 24. There is sufficient flexibility already in the Bill, combined with raising the threshold to 20 members, that gives the panel the opportunity to get the right balance that this House has called for. I genuinely mean this.

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[Baroness Farrington of Ribbleton]

I hope that the Minister can give figures. I understand that there are specific circumstances to do with Cornwall, where it is felt that its representation is overmatched by that coming from Devon. But the figures of interest in terms of reflecting needs and all the communities are for Kent, Essex, Hampshire and, to a slightly lesser extent, Lancashire, because of the difference of size of population and the number of local authorities. I can see noble Lords nodding.

[Baroness Browning]

I have said that I will make sure that certainly before Third Reading, and I hope within the next 48 hours, I can write to noble Lords and place a copy of that letter in the House Library showing how this new threshold of 20 will impact on every police force in the country. That will show what the numbers would have been if I had left the Bill unamended with my increase to 20, and what the impact will be after raising the threshold to 20. I hope that noble Lords will be sufficiently encouraged and reassured when they have a chance to compare what the situation would have been in the Bill as previously drafted and the situation as with the new amendment that I have spoken to today.

[Baroness Farrington of Ribbleton]

I thank the Minister for agreeing that we can come back to this at Third Reading.

[Baroness Browning]

I have to say that this amendment is a major concession on the part of the Government. It is free to all noble Lords to come back at Third Reading, but I believe that this is a very significant concession, which reflects a lot of the points raised across the House.